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(i) Establishment
3.1 HM Prison Barlinnie is located to the north east of Glasgow, four miles from the city centre and adjacent to the M8 motorway. Built in 1886, it is Scotland's largest prison and at any one time, accounts for up to one fifth of the entire SPS population.
3.2 Its five large Victorian Halls are in the process of being refurbished
as part of a
rolling programme which commenced in 1996 and includes the installation of integral
sanitation in all cells. Work on one Hall has been completed, to a high standard,
and the Governor has pledged that when the next one is upgraded, it will be
used for housing remand prisoners. Work on this Hall was scheduled to begin
in the autumn of 1999 but was delayed as part of national contingency arrangements
for the millennium.
3.3 Until recently, the prison was chronically overcrowded but the opening of HMP Kilmarnock in March 1999 has significantly reduced the overall population. However, this had little impact on the number of remands, who now account for one third of the total population. Many of those arriving at the prison -and this can be as many as 200 every week - can be suffering from the affects of alcohol and/or drug misuse. A significant number may also suffer from psychiatric complications and since 1986, there have been 39 suicides.
(ii) Inspectorate's Comments
3.4 A formal inspection of the prison was carried out in May 1997 and at that time, all remand prisoners were being accommodated in 'C' Hall. This, like the other Halls, was of the traditional gallery style with the cells located on four landings. There was cellular accommodation for 172 prisoners though at the time of our visit, the actual number held was 269. Communal areas of the Hall were generally clean and bright.
3.5 In direct contrast, however, the cells were dirty, run down and in very poor condition. The standard of furniture throughout the Hall was shabby and in some instances, the way beds were fitted together appeared to contravene health and safety standards. There was a shortage of pillow cases and mattresses were grubby and stained and did not meet fire safety standards. Chamber pots were found to be in a filthy, encrusted state. With the exception of areas where prisoners had tried to keep them clean, walls were covered in stains and graffiti, with the paint peeling off. Prisoners attending court often left their cells uncleaned, with rubbish lying around. Ablution areas were located on each flat but these were insufficient to meet the basic needs of the prisoner population and ventilation arrangements were inadequate. In overall terms, living conditions in the Hall did not appear to meet basic requirements and it was recommended that a common standard of cell conditions and furniture should be set.
3.6 Meanwhile the Hall routine was changing on an almost daily basis due to fluctuations in staffing levels and prisoner numbers. In addition, although there was a laid down daily programme of activity, it appeared to vary as a reaction to circumstances, rather than in any planned way. Every daily activity, including periods of recreation, PE and (usually indoor) exercise, involved a restriction on the numbers of those who could participate, though there was a rota to try and ensure some form of fairness. Inevitably, prisoners could expect to spend much of the day locked in their cells.
3.7 Group rooms were available for some work on issues such as drug and alcohol but sessions such as these were dependent on staffing levels. Overall, there was very little by way of stimulation or activity for prisoners.
3.8 Prisoners interviewed during the inspection were extremely critical of the conditions in which they were being held. They complained about a lack of exercise, the lock-up conditions which prevailed for most of the day and a lack of changes of underwear. (One group claimed that they only had one change of kit per week.) Visit facilities were also severely criticised and in particular, the system of nominating eight people who would be potential visitors but without any authority for this list to be amended. It should be noted if this practice is being carried out at present, there is no basis in domestic law for such a practice and such a practice may contravene article 8 of the Convention.
3.9 We returned to the establishment in 1998 for a follow-up inspection but found that there had been little or no improvement to the vast majority of cells in the Hall. However, work had just commenced on the installation of new cell furniture and bunk beds.
3.10 As part of that intermediate inspection, we spoke to a group of remand prisoners who said there had been some improvement in their conditions, including more access to outdoor exercise and more frequent kit changes. Additionally, we noted that there had been some improvements to induction arrangements, whilst measures to increase the amount of time out of cell were under active consideration.
3.11 We were, however, delighted to be informed that the Governor had decided that when the next Hall was refurbished, it would be made available to remands.
(iii) Researchers' Comments
3.12 A new entrance and reception area had recently been provided for visitors and had dramatically improved the presentation of the establishment as a modern and efficient organisation. Remands were still being held in 'C' Hall, though newly remanded prisoners were now going through an induction programme in 'B' Hall, which also held a range of convicted prisoners, who underwent separate induction. (The intention was to keep new arrivals in the induction unit for three days but at the time of the Researchers' visit, this period was being extended due to the high numbers in 'C' Hall.)
Views of Prisoners and Staff
(a) Prison Location
3.13 The general view was that the location of Barlinnie was "fine" if you lived in Glasgow but that it could be a complicated journey for those who came from further afield.
(b) Induction
3.14 A comprehensive induction manual had been compiled but had not been made available to prisoners at the time of our visit. In addition, the information it contained seemed to focus more on the entitlements for convicted prisoners. For remand prisoners, the induction process seemed to concentrate on getting information for the purpose of assessing the risk of self harm. One first offender said he had found the induction period useful and helpful but the more experienced prisoners were much more sceptical.
3.15 The induction programme was spread over three days and appeared to consist of an assessment interview and a group session which covered a range of issues for newly admitted prisoners (including videos of aspects such as AIDS and the Listener Scheme). The aim was to instil a culture whereby prisoners took responsibility to inform staff about any concerns or problems. The full process was not repeated if a prisoner was readmitted within a short period; in those cases, the process consisted of a reassessment interview.
3.16 The view of social work staff was that the time spent in induction was quite short and because it focussed largely on prison issues, an opportunity for a more broadly based package was being missed.
(c) Living Conditions
3.17 There was universal agreement amongst the staff interviewed that conditions in the cells were unacceptable. This included reference to the fact that a substantial amount of time was being taken up with the process of slopping out _ a practice that was expected to continue at Barlinnie for another five years.
3.18 Prisoners described the living conditions as a "disgrace" and mentioned problems over litter collection and cockroach infestation. It was said that there was insufficient hot water, as well as a shortage of showers and toilets. Access to contracted services was by request first thing in the morning or left to the next day, resulting in a continual tension between queuing for ablutions and making requests (which created particular difficulties for those individuals who were less assertive).
3.19 Meals were eaten in the cells and were said to be cold, because of the length of time it took to get the trays to the cells.
3.20 We were told that in order to be permitted to wear their own clothes, prisoners had to have seven sets of clean underclothing handed in as property. With seven sets having to be handed out at the same time, this was causing considerable difficulty and was forcing a number of remands to wear prison clothing.
(d) Contracted Services
3.21 Remands were being seen on admission by a doctor but thereafter, nursing staff were the first point of contact for most medical needs. It was evident that medical and social work staff were extremely stretched and their work often had to be supplemented by agency staff (who could only have a cursory idea of how the regime operated). Nurses were now administering over 100 treatments per day to remand prisoners. Suicide risk and drug withdrawals were of particular concern to medical staff and a drug detoxification programme, which consisted of librium and lofexidine, was also in place.
3.22 A social worker was attached to the remand Hall and at one time, this worker had been seeing all new admissions to deal with immediate needs. However, information about social work had since been included as part of the induction process and initially, the onus was now on prison officers to deal with welfare problems. Housing, homelessness and rough sleepers posed the biggest problems but under a recent initiative, a housing officer had been appointed to the social work staff. Addictions were also a major cause of referrals and the social work unit provided drugs counselling for remand prisoners, whilst Barlinnie Alcohol Services provided counselling for alcohol problems. The general view of the social work unit was that there was a perceived need to place the remand group on a higher priority and it was hoped that the imminent refurbishment of the Remand Hall would provide the focus for this (together with an opportunity to target the longer term remand prisoners).
3.23 Prisoners claimed that the process of seeing a nurse created delays in getting to see a doctor and some had the view that there were often lengthy delays in getting even basic medication sorted out. If they were unwell, they had to be on request for a doctor by 0630 hours or they would not be seen that day. Some claimed that the detoxification programme was very limited.
(e) Occupation
3.24 The lack of occupation was a major cause for concern for staff. The prison's official information system verified that the time spent unlocked was limited, with very few activities being available. The main work opportunities for remands were as 'passmen' and there was a work party of 20 which undertook some cleaning in the kitchen, with plans to employ up to 25 remand prisoners in the prison laundry.
3.25 Prisoners were also greatly concerned by the time spent in lock-up. In addition, the prisoners' perception was that there could be confusion about which group had had recreation and that as a result, some often missed out completely. PE, whilst regarded as excellent, was said to be limited in availability and it was recognised that the present facilities for PE remained woefully inadequate, despite Barlinnie's repeated bids for the necessary investment.
(f) Contact with Outside
3.26 Visits had to be booked by telephone and this caused concern. (Despite the existence of a dedicated phone line, there were difficulties in getting through.)
(g) Categorisation
3.27 Staff seemed to accept the fact that all remand prisoners should automatically be categorised 'B' due to the practical difficulties of making any other assessment in the short time most remands spent in the prison. Concern was also expressed about the mixing of remand and convicted prisoners during induction in 'B' Hall, which often resulted in the remands being kept locked up.
(h) Special Concerns
3.28 Suicide risk was a major concern for staff, though a new case conference system was said to be working well. However, it was regarded as time consuming, especially as staff had to process more than 40 prisoners for Court each day. Prisoners with mental disorders also posed a major worry, particularly as there were very few staff with experience to support this group.
3.29 The situation for YO 'lodgers' was said to be particularly difficult. One YO passing through Barlinnie described leaving Longriggend early in the morning, then waiting some time at Barlinnie prior to being taken to Court, returning to Barlinnie later that day and then being kept in a reception cubicle for a lengthy period, before moving to 'B' Hall late in the afternoon, with only a sandwich to sustain him. (He also said that because of their short stay, under-21s were not given clean bedding and were not allowed to bring phone cards from Longriggend. They had no means, therefore, of communicating with families about the outcome of the Court hearing.)
3.30 Another difficulty, confirmed by staff, related to the difficulties faced by those who had no money.
(iv) Overview
Researchers' Comments
3.31 Staff and prisoners reported a range of difficulties in a number of areas, a situation which mirrored that described in the 1997 Inspectorate report, with high numbers creating a significant management problem for staff when attempting to meet the basic needs of so many people. The regime was widely regarded by staff and prisoners as limited in terms of material comfort and impoverished in terms of daily routine and occupation. This position was especially true for under 21s.
3.32 There was a view that the induction programme which operated had become routine. Many staff felt that the scheme had the potential to offer more information, not only on prison matters but also on other aspects of concern to remand prisoners.
3.33 Many of the physical conditions will be transformed in due course by the refurbishment programme. In the meantime, however, some anomalies identified by staff and prisoners, such as the rules regarding the wearing of own clothing and more regular access to recreation, could be attended to now.
Inspectorate Comments and Outlook
3.34 It has been nothing short of a national disgrace that over the years, so many remand prisoners have had to pass through and endure the squalid conditions in Scotland's largest prison. However, with an end to overcrowding in the SPS and a major refurbishment of the remand Hall in sight, it is possible to look forward to much improved conditions for this hitherto severely disadvantaged group of prisoners. The excellent new visits facility provided a tantalising glimpse of what Barlinnie aspires to become. However, it also highlights the scale of the redevelopment task, which must be given a high priority if significant and necessary improvement in conditions for prisoners, more particularly the largest remand population in Scotland, are to be achieved.
3.35 A change in the physical conditions will bring many improvements _ not least in staff/prisoner relationships. Nevertheless, we support the Governor when he says that this will not be enough. Running what is Scotland's largest remand centre will also need the appropriate supporting resources, in terms of both money and a sufficient number of trained staff. In addition and especially when young remands from Longriggend are also relocated within the prison perimeter, we believe it may become necessary to assign one Governor to be in separate control of all remands. The problems caused by insufficient resources and woefully inadequate facilities continue to impede progress in developing a less unacceptable regime for remand prisoners. These problems should not be expected to be easily solved in the short or medium term. Indeed, the transfer of young remands from Longriggend to the temporary accommodation in Letham Hall is likely to impose additional burdens on an already heavily loaded prison.
(i) Establishment
3.36 Cornton Vale provides custodial facilities for remanded and sentenced females and is the only purpose built penal establishment in Scotland for women. (Aberdeen, Inverness and Dumfries hold some female remands and short term offenders to offset their remoteness from Cornton Vale.)
3.37 Built in 1975 and with an original design capacity of 217, Cornton Vale has a modern campus design, which contrasts sharply with some of its Victorian era counterparts. The original remand facility is currently closed for extensive refurbishment and further upgrading of other accommodation is planned. On average, remand prisoners account for up to 25% of the prisoner population. A further 35% are made up of convicted prisoners who are serving sentences of less than 12 months. The vast majority of prisoners come from Glasgow and the west of Scotland, whilst Edinburgh and the east account for about 20%. About one fifth of the women are under 21.
3.38 Since 1995 there have been eight suicides, of whom six were on remand. This has resulted in considerable national attention on the establishment and latterly, on the nature of those women offenders, or alleged offenders, who are being imprisoned.
(ii) Inspectorate's Comments
3.39 The most recent full inspection had been carried out in May 1996 when three suicides had taken place in the space of less than ten months. At this stage, the remand block had single cell accommodation for a maximum of 41 prisoners.
3.40 The daily routine was greatly influenced by the nature of the population and out of a total of 54 prisoners in the Block, 18 were the subject of 15 minute observation and 17 of 60 minute observation. In addition, two women were on strict suicide supervision and four were on basic supervision. This meant that nearly 76% of the population were on some form of suicide or medical observation.
3.41 The overwhelming majority had been placed on medical observation because of the physical and emotional problems connected with drug withdrawal. The expectations of care which were, therefore, being placed on staff were becoming more and more demanding. Discipline staff were in effect trying to manage what amounted to a Health Centre annex, for a population that was suffering from a combination of poly drug abuse, behavioural difficulties, mental health and multiple social and personal problems (quite apart from the additional pressures of awaiting Court appearances and separation from family and children). Despite these difficulties, the commitment and care displayed by staff was impressive, though not many had received any systematic or recent training appropriate to their role.
3.42 It was noted that prisoners on observation were two and sometimes three to a cell, without access to toilet facilities. Members of this group were also not permitted access to night sanitation facilities, which meant that chamber pots had to be used. Given the distressing physical symptoms which can accompany drug withdrawal, this was a highly undesirable practice. At that time, it was commonplace for male Officers on night shift or during patrol periods to undertake observation of female prisoners, without a female Officer being present.
3.43 The regime for remand prisoners was extremely limited and when staffing permitted, an Officer was permanently allocated to the Unit which housed the most fragile women. However, staff interaction was restricted to close supervision and 'chatting', due to the demands of the observation process. There was no multi-disciplinary team approach or regular case conferences and there had been no psychology services for 12 months. Contact with external agencies appeared to be limited.
3.44 Recreation centred around television and videos or music in each sitting room. A PE class was available each morning but many prisoners were either too lethargic or unwell to participate. Outside exercise was confined to a fenced yard and weather permitting, was available daily. However, due to staffing and observation difficulties, this usually meant prisoners having to choose between outside exercise and being locked in their rooms. Two education classes and one cookery class per week were available but places were not always taken up.
3.45 A telephone was available but this was sited in a busy location and lacked privacy. Demand for its use was so great that bullying for telephone time was not uncommon. Visits were available Monday-Friday for up to a maximum of one hour but there were no visits available at week-ends.
3.46 Given the nature of the remand population and the significant problems that had arisen in the immediately preceding months, the inspection report stressed that a much more co-ordinated and multi-disciplinary approach was needed, beginning at the point of admission to the prison. A large number of other recommendations was also made.
3.47 During the course of subsequent follow up inspections from 1997 onwards, it was noted that conditions had begun greatly to improve, particularly in regard to admission procedures and the sharing of information. Staff training had also been increased and was clearly showing a return on the investment of time and effort. Nevertheless, although the most recent follow up inspection in February 1999 had shown that progress was continuing, the number of remand prisoners had also grown - at the time of our visit there were 70.
3.48 Separately, a review of the SPS population statistics indicates that half of the female convicted population are allocated security category 'C' within 24 hours of conviction. This reinforces the view that the automatic categorisation of remand prisoners - and more especially female prisoners - as security category 'B' imposes unnecessary restrictions. It also requires staff to be deployed on security duties which are out of proportion to the security risks presented by the majority of remand prisoners.
(iii) Researchers' Comments
3.49 Remand prisoners were generally held in Ross House although a few were also in Younger House because of the high numbers. At the time of our visit, there were 71 women on remand. According to staff this was creating significant demands on them, particularly given the obvious distress of many of the prisoners.
3.50 The remand block was divided into six units, consisting of three at ground level of single cell accommodation suitable for up to seven prisoners and three upstairs equipped with bunk beds and housing up to 15 prisoners each. There appeared to be an informal classification process in operation so that the more difficult or experienced women were grouped together, with Unit 1 accommodating the most vulnerable prisoners. Each Unit had a lounge area for recreation purposes where meals were also taken, a kitchen and bathing/toilet facilities. These areas were furnished and decorated to a high standard.
Views of prisoners and staff
(a) Prison Location
3.51 Virtually all prisoners interviewed expressed dissatisfaction over the location of the establishment. Staff also commented on the difficulties experienced by visitors, most of whom had to travel some distance. Similarly, liaison with other agencies, particularly in the west of Scotland from where the majority of prisoners originated, was not without considerable inconvenience.
(b) Induction
3.52 Induction processes had been developed as a matter of priority, following the number of suicides and incidents of deliberate self harm.
3.53 The admission process consisted of a health care assessment and a general assessment for risk and other issues. Information about the prison system and the rules was also given where needed. All admissions, who according to staff were invariably terrified, were given a 24-hour introductory booklet to read. All remand prisoners were also routinely interviewed by a social worker and on admission, a personal care folder was opened - unless the woman had been in Cornton Vale before, in which case her folder was re-activated.
3.54 Those prisoners interviewed (most of whom had been at the establishment before) seemed uncritical of the admission process and the general lack of a formalised induction programme. (At the time of the visit, Cornton Vale was housing an unusually large number of foreign nationals and one interviewed had experienced extreme difficulties in learning what was likely to happen to her, was confused about her entitlements and there were difficulties about contacting her family.)
3.55 The impression was that Cornton Vale was making good progress in its efforts at dealing with the majority of women in its care, namely chaotic drug users and highly vulnerable women.
(c) Living Conditions
3.56 The Units in the housing blocks allowed for some segregation so that younger prisoners and first timers were kept apart from prisoners with a more substantial criminal history. Prisoners were nearly all housed two to a cell designed for one, with a consequent reduction in privacy. The staff view was that it was more difficult for prisoners on remand, largely because of the overall crowded conditions in the old remand block.
3.57 Most of the prisoners complained about lack of access to the lavatory and indicated that they used the basin in the cell because they were not allowed out (although chamber pots were available). Problems were also caused by the limited access to showers and the lack of privacy in the ablutions area, particularly when male officers were on duty.
3.58 There seemed a universal view amongst prisoners that the food was poor and caused real hardship to those who had no access to money, this lack of money being perceived as a problem for quite a number of prisoners.
(d) Contracted Services
3.59 Access to social work was good and the service considered helpful by those prisoners who had used it. Prisoners were, however, critical of the medical services. Most prisoners claimed that the health care service was not as good as that provided by their own GP practice, where they said they could get an appointment to see a doctor the same day if required. A detoxification programme was available and drugs counselling was provided by a Glasgow based agency, though their remit for throughcare was only for those prisoners from the Glasgow area. However, drugs support could also be organised for women who came from other parts of Scotland. Harm reduction classes were being held twice weekly in the remand block.
3.60 There was a consensus amongst the staff interviewed that many of the women coming in on remand should not be there, as so many were in a poor physical state because of drug abuse, which was often exacerbated by mental health issues. Officers considered social work and medical support to be good, although access to the doctor was limited by resources and demand. Psychiatric and psychological services were also very stretched.
3.61 The social worker saw every new remand although there were problems with interview space in the Block. Mothers with young children caused real concerns though on the whole, many were not the sole carer, with an older generation frequently looking after the children.
e) Occupation
3.62 All prisoners spoke of long periods being spent on lock up, though television had helped to relieve some of the boredom. However, in-cell television was not available for those considered most at risk of suicide (viz., those under the ACT strategy and those housed in Unit 1). Vulnerable prisoners were technically kept out of their cells all day to compensate for this but in practice, the high number of remands made this difficult to achieve. The prison's audit of SPS Operating Standards confirmed that the time prisoners spent unlocked was below the prescribed times for weekends but said the prison exceeded minimum standards for time unlocked during the week. The staff view was that prisoners were usually locked up to enable them to manage tasks, including regular observation and a high number of case conferences for women at risk of suicide.
3.63 A Supervisor considered that there was a general lack of occupation for remand prisoners and that the activity programme lacked structure. A range of classes was available but numbers were restricted. At weekends the regime was further reduced. Access to outside exercise seemed limited and a number of prisoners spoke about a lack of fresh air, a situation compounded by the lack of secure exercise yards.
(f) Contact with Outside
3.64 The main difficulties for outside contact were a consequence of the location of the establishment. Staff expressed concern that lawyers often gave false expectations and were slow to respond to requests for contact or information.
3.65 Access to official telephones seemed to be a source of confusion amongst some prisoners. According to the prison's information, if a prisoner tells an Officer that her phone call may be upsetting, the Officer will allow the prisoner to use a phone in one of the offices for greater privacy. It was claimed that the Operating Standard regarding foreign nationals' use of the telephone was exceeded but it was not clear from the interviews whether prisoners were aware of this facility.
3.66 We were advised that eight voluntary organisations (e.g. CRUSE and Rape Crisis) came into the prison, usually in the evenings, and that remand prisoners could have access to these organisations, "if required".
(g) Categorisation
3.67 Staff expressed the view that many prisoners would be category 'C' if they were convicted. However, given the problems associated with women on remand, staff thought it necessary for them to be category 'B'. The social worker pointed out that this had created problems for a pregnant woman who could not be moved to the Mother and Baby unit because of her 'B' category status.
(h) Special Concerns
3.68 The general view was that the experience on remand was tougher than as a convicted prisoner, with a comment from one prisoner being that she felt that she was "treated as guilty and being punished". This sentiment was also reflected by an under-21 who at that time was deemed to be at risk of self harm. She said that she found the process of suicide observation to be very punitive.
3.69 Comment was made that the report system for disciplinary offences seemed discriminatory, punishing prisoners for being "bad women" (the impression from prisoners was that this approach came mainly from female staff, who punished unfeminine behaviour such as swearing22). There seemed to be a consensus view that the male officers were more relaxed and less inclined to take a punitive approach to minor misdemeanours. The view was expressed from prisoners that punishments were generally too harsh for minor infringements.
3.70 Working on the remand block was considered to be extremely stressful by staff and a less experienced Officer felt that more training was required to deal with high risk situations. The decision to place prisoners on observation under the SPS's new anti-suicide strategy was not taken lightly by staff and much was done in Unit 1 to support those at risk of self harm.
(iv) Overview
Researchers' Comments
3.71 Staff felt that the issues of anxiety and uncertainty about the future, which previous research has shown affects all remand prisoners, were compounded by the high numbers on remand and the design of the accommodation. Prevention of suicide was in many senses the dominant feature of the regime and staff set much store on the adaptation of a block to house this group of prisoners.
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| Architect's impression of new remand block, due to open in summer 2000. |
Inspectorate Comments and Outlook
3.72 Notwithstanding some of these views, it is clear that there has been considerable progress at Cornton Vale over the last three years. Nevertheless, there is cause for concern as the number of women, more especially remands, being sent into custody is on the increase. There is an attendant danger that the sheer number of bewildered and sometimes deranged women could undermine the establishment's ability to provide the early individual attention which nearly every female prisoner appears to need.
(This establishment was not visited by the researchers and the following information has, therefore, been taken from the report of a formal inspection that was undertaken in May 1999.)
(i) Establishment
3.73 Known locally as Jessiefield, HM YOI Dumfries is located one mile to the west of Dumfries town centre. Built in 1883, it had a new block added in the 1960s, in addition to which its residential Halls are presently undergoing extensive refurbishment.
3.74 Its primary function is to act as an institution for YOs serving long sentences but it also holds a relatively small number of untried and convicted adult prisoners from the courts of Dumfries, Stranraer, Kirkcudbright, Annan and Lockerbie. In addition, there is a female unit for up to 10 prisoners.
3.75 Two suicides have occurred at the Institution since 1986, both of which involved prisoners on remand.
(ii) Recent History
3.76 'D' Hall is in an area separate from the other main accommodation units and is normally used to accommodate local remand prisoners. However, because of the work going on in other parts of the Institution, at the time of inspection it was also being used to accommodate local convicted adult prisoners. Since the time of the previous formal inspection, the Hall had been refurbished with a number of cell walls having been knocked down to create larger cells, the majority of which now contained three or four beds. The cells were in good condition and as part of the refurbishment, each had been provided with an enclosed integral sanitation unit and a wash-hand basin. All cells also had electric power, pin boards and sufficient furniture of good quality.
3.77 Within the Hall were a recreation room, which contained pool and table tennis tables, a television room, a fully furnished kitchen area (which was used mainly to provide hot meals for admissions who arrived outwith normal meal times) and a large toilet/shower area.
3.78 The Female Unit was also separate from the main residential part of the establishment and contained a mixture of accommodation. There were three single cells that had been designated for category 'C' prisoners. Each had a key to their cell door, thereby giving them access to night sanitation facilities, including a shower unit. These cells had electric power and were in good condition with an adequate amount of furniture. There was also a cell that had been designed to meet the needs of any disabled prisoner and which had a specially adapted en-suite toilet/shower facility. Finally, there were two dormitories, each with accommodation for three. These rooms had electric power, integral sanitation, wash-hand basin, pin boards and adequate furniture. The remainder of the Unit comprised a number of rooms, one of which was a work area, which contained a pool table, a laundry area, a toilet/ablutions area and a small stock of books which comprised the Unit's library. In addition, there was a general store room which contained two lockable cupboards (which served as the Unit's canteen), an interview room, a staff office and a general purpose area which had a television/video and was used as the main recreation and dining area. Immediately outside the Unit was a self-contained exercise yard.
(iii) Comment
(a) Male Prisoners
3.79 Because the remand Hall was separate from the other parts of the Institution, it was possible to run a self-contained regime and accordingly, we were pleased with the amount of time out of cell that was being offered. It was also very noticeable that staff and prisoner relationships in this part of the Institution were excellent. Recreation was available twice a day within the Hall and there was the offer of visits every weekday in the afternoons. Canteen was available three times a week and a booking system ensured that everyone had equitable access to the single telephone that was located within the Hall. We noted with interest that prisoners had open access to a computer which had a Welfare Rights programme installed.
(b) Female Prisoners
3.80 As with the female units at HMPs Aberdeen and Inverness, the main problem for women prisoners was the fact that the transient and small population made it very difficult to provide a full and purposeful regime. Efforts were made to provide meaningful work but this had always proved difficult and at the time of our visit, the main task for prisoners was repairing damaged denims from Reception. There was a one hour period of outdoor exercise immediately before lunch; in the afternoons, visits were available every weekday for both remand and convicted prisoners, with opportunities for bonding visits for those with children. For those not at work or when work was not available, recreation was in the afternoons and consisted of pool or watching TV/video, with the same facilities being available in the evenings.
3.81 As with the male population, we were satisfied with the amount of access to showers, telephone, canteen and kit changes, with a facility being available to enable prisoners to do their own laundering. PE was available in one-hour sessions on both Saturday and Sunday. Education was available but on a distance learning basis and only for those who were convicted and serving longer than three months. There was no formal induction process and the Unit did not have its own Reception facility, which meant that on admission, all prisoners had to be processed through the main Reception area. The Unit had one anti-ligature cell and could, therefore, cope with only one prisoner on observation.
3.82 Whilst acknowledging the problems of providing a regime for such a small population, our report nevertheless recommended that an urgent review of arrangements for women prisoners should be undertaken. It was suggested also that a structured induction programme should be provided for both male and female remands.
(i) Establishment
3.83 Known locally as Gateside, the prison is situated on the southern outskirts of the port of Greenock and was built shortly after the turn of the century. As a local prison, it holds male remand prisoners aged 16 years or over who are awaiting trial or sentence from the courts of West Strathclyde. It retains those adult prisoners on conviction who have been given short-term sentences and transfers the others to their prison of allocation.
3.84 In addition to its function as a local prison, the establishment also holds a sizeable group of LTPs who are nearing the end of sentence and provides them with an enhanced regime which is intended to provide personal development opportunities in preparation for further movement through the prison system and then release. Finally, it accommodates a number of LTPs outwith normal classification who have been presenting management problems in their parent establishment and require a period of stabilisation.
3.85 In recent years it has acquired the unenviable reputation of having the highest prison suicide rate in Scotland. Since 1991 and amongst a population that rarely exceeds 250, there have been 16 deaths - twelve in the last four years, of which the majority were prisoners on remand.
3.86 The prison has three separate accommodation areas. Remand prisoners, as well as some short-term convicted prisoners, are located in 'A' Hall, which is of traditional gallery style design with the cells having integral sanitation. Both Darroch Hall and the more modern Chrisswell House are allocated to LTPs.
(ii) Inspectorate's Comments
3.87 The last formal inspection took place in November 1995 and at that time, 'A' Hall was holding a complex mix of adult and under-21 remands, adult short term convicted prisoners, adult LTPs out of classification and a large number of PADs (who are now held at HM Remand Institution Longriggend). The Hall had a design capacity of 122 but at the time of our inspection, the population was 181 and included 72 adult and 42 under-21 remands.
3.88 Whilst communal areas on the four landings in the Hall were found to be reasonable, the condition of cells left a great deal to be desired. Furniture was in a poor condition, standards of hygiene were inadequate and beds were in need of repair. Bed linen was grey through age or from poor washing, whilst many mattresses were missing fire retardant covers. In addition, restrictors had been placed on the windows to limit their opening but this had the side effect of restricting ventilation, which meant that most cells were airless and stuffy.
3.89 However, the major problem was the sheer number and diversity of prisoners being held in one extremely busy Hall, a situation compounded by the fact that many were arriving with drug problems. Almost certainly, this was a contributory factor to the escalating suicide rate and the inspection report recognised that there was an urgent need to provide a much better regime for remand prisoners.
3.90 Three intermediate inspections were undertaken between 1996 and 1998, when it was noted that gradual improvements were taking place. These included the introduction of a basic induction programme for remands and improvements to the conditions of the cells. The atmosphere in 'A' Hall had also improved, a situation assisted by the relocation of the Health Centre. The construction of Chrisswell House had also helped ease conditions throughout the prison.
3.91 Nevertheless, there was considerable concern over the prison's high suicide rate. Prisoners spoken to during inspection attributed such incidents to the initial shock of imprisonment, drug withdrawal and boredom. We were, however, reassured by the way in which the SPS's revised suicide prevention strategy had been introduced.
(iii) Researchers' Comments
3.92 A new induction programme was in place and operated on the bottom flat of 'A' Hall. Other remands were located on the top flat with a limited number of short term convicted prisoners utilising the middle flat accommodation.
3.93 Communal areas in the Hall were reported as clean and well maintained and cells were described as being in reasonable condition, albeit that they were cramped for two people. Recreation facilities, which included pool, TV and video games, were immediately adjacent to the Hall and again, were seen as adequate.
3.94 Cells with anti-ligature fittings were located on the bottom flat and vulnerable prisoners could have access to a nearby lounge area where they could be readily observed.
Views of Prisoners and Staff
(a) Prison Location
3.95 Considered generally accessible, there were problems for families travelling from outlying areas, although extended visits were a possibility if prisoners/families knew of their availability. The requirement to book visits four days in advance created difficulties for some.
(b) Induction
3.96 As noted in the Inspectorate's comments, the induction system had been introduced recently and was seen by staff as a good opportunity to identify and support drug users. Following reception in the evening, remand and convicted prisoners were shown the cell and Hall facilities. This was followed the next morning by a briefing from Residential staff on the prison's regime and routines with a handout which appeared more relevant to convicted prisoners. It suggested that some programmes, such as drugs awareness and anger management, might be available to remand prisoners, whereas it appeared they were not.
3.97 Although induction was programmed as a full day and staff were clearly involved for that period, for prisoners the actual time involved was much shorter. As a result, the induction process seemed to be having little impact, with some prisoners appearing unclear as to whether they had undergone any such process. However, the positive staff/prisoner relationships compensated for this, with staff considered approachable. There was a view that some prisoners were treated differently (i.e. better) because they were well known to the staff. Use of first names was the norm.
(c) Living Conditions
3.98 The general view was that cell accommodation was reasonably good, though the lack of privacy when using the in-cell toilet was an issue. Remand prisoners were free to wear their own clothes and were given a laundry bag for washing, a system that seemed to work well. However, there were difficulties in gaining access to items handed in at visits, as these could only be collected on a weekly basis from reception. As regards food, prisoners commented that the main problem was the lack of variety. Those on protection collected their food first and took it back to their cells to eat but given that there was an unscreened toilet in the cell, this was largely regarded as unacceptable.
(d) Contracted Services
3.99 Access to a doctor was through the nursing staff and prisoners were generally happy with that arrangement. A 21-day detoxification protocol using diazepam and dihydrocodeine was available as well as drugs counselling, though regular methadone prescriptions were not maintained. The response to the detoxification programme by prisoners was generally positive.
3.100 Because of demands elsewhere, social workers were pressed to provide a service to remand prisoners. Priority groups were targeted as the vulnerable or those likely to self harm, Schedule 1 offenders, under 16s and any case where there was a statutory involvement. Child care issues were a frequent issue with remand prisoners. The onus was on prison officers to provide a welfare service but this had a mixed response from staff, some of whom were resistant to giving practical help. The lack of social work interview rooms in 'A' Hall created difficulties and the potential to make more use of social work expertise was considered to be generally under used. Prison staff, as well as nurses, social workers and the chaplaincy, met daily to share concerns about individual prisoners on each flat, which seemed to work well and added to the cohesion of the staff group.
3.101 All prisoners on a detoxification programme were seen by the drugs worker but as she was only in the remand Hall two days a week, there was a lack of continuity. Remand prisoners also had to be remanded for the maximum 110 days before being offered counselling, as this required forward planning. There was a range of people involved with drug users and there was now an initiative to bring them together to co-ordinate services better.
(e) Occupation
3.102 The main complaint from prisoners was of boredom and the amount of time spent locked in cell, particularly at weekends. The regime activities consisted mainly of PE, exercise, recreation and visits, whilst access to education was limited, with none being specifically timetabled (except for under-21 remands who were allocated one morning per week).
(f) Contact with Outside
3.103 Visits were available six days a week and included evenings. Although the half hour visits were considered too short, most of those interviewed were satisfied with both availability and the conditions for visits. Access to lawyers created problems for some and in particular, telephone contact as lawyers were frequently not immediately available and it was difficult for prisoners to keep ringing back. Use of the office phone for contact with lawyers seemed inconsistent in operation, with some prisoners unaware of the availability of free letters to agents.
(g) Categorisation
3.104 Staff had mixed views on the need for prisoners automatically to be category 'B'. Some felt that the lack of knowledge about individuals on remand presented difficulties for categorisation, whilst others suggested that an algorithm that was not time consuming could be used.
(h) Special Concerns
3.105 Drugs were thought to be the major problem for remands, with it being estimated that around 80% were using heroin, of whom it was said 50% could be intravenous injectors. This presented a significant hazard with possible sharing of injecting equipment. Prisoners were, however, offered hepatitis B vaccinations.
3.106 The mixing of adults and under 21s in the Hall was a problem. All under 21s were housed two to a cell and were encouraged to attend education. Concern was expressed by staff about the regime for protection prisoners, where bullying was seen as a particular problem.
3.107 The ethos of the prison was for a relaxed regime within a secure perimeter. The numbers in the Hall were generally high, which created problems for managing the diverse regimes. Items handed in were distributed on a weekly basis only, as the recording process was particularly laborious and time consuming.
(iv) Overview
Researchers' Comments
3.108 The major concerns about remand prisoners at Greenock were significant drug problems on arrival, suicide, high numbers and a diverse mix of prisoners in the one Hall. There were, however, good relationships between staff and remand prisoners.
3.109 The perception of prisoners was that they spent more time in their cells than the official regime suggested. The lack of activity also exacerbated difficulties for the large number of withdrawing drug users. In addition, the regime appeared to limit opportunities for contact with the various welfare services.
Inspectorate Comments and Outlook
3.110 Greenock illustrates the dilemma that occurs at remand prisons, namely looking after a very diverse group of prisoners. The result is that those on remand often receive far less priority than they should. In addition, prisoners at Greenock appear to be suffering from the many problems associated with drug misuse - a factor that could be contributing to the high suicide rate.
3.111 Induction arrangements could still be improved, whilst better activities to fill the time, particularly at week-ends, are also required. In this regard, in-cell TV might help considerably.
3.112 Subsequently, we have been encouraged by the plan to refurbish 'A' Hall and use it solely to house adult remands (and when Longriggend closes, also to house PADs). This work began in November 1999 and was scheduled to last about five months.
(i) Background
3.113 HM Prison Kilmarnock, near Hurlford, was opened in March 1999 and is the first and only privately managed prison in Scotland. A consortium led by Premier Prison Services was awarded the contract to design, construct, manage and finance the new 500 place prison, which provides a high standard of living accommodation.
3.114 Arrangements within the specification of the contract include a set of standards agreed between the SPS and the service provider for both remand and convicted prisoners. If these are not achieved, the service provider is liable to the imposition of financial sanctions. In this context, standards for remand prisoners are subject to monitoring by an SPS Controller and this appears to have resulted in a greater focus on their regime development.
3.115 The contract states in unambiguous terms what is expected of the regime, the most striking aspect of which is an agreement to afford remand prisoners the opportunity to spend a minimum of 10 hours out of cell. Specific activities within the regime plan include educational opportunities for two afternoons, with initial educational assessments for basic literacy and numeracy. Access to PE is available on two afternoons and a library service is available. There is unrestricted access to the telephone during association, including a personal telephone account which enhances opportunities for contact with family, friends and lawyers.
3.116 There are, however, some limitations on the type and length of programmes that can be offered to remand prisoners, though a Preparation for Custody modular programme is being prepared. This includes basic drug awareness, coping with custody and assertive training. Once difficulties over local contracts are overcome, it is intended to offer work to remand prisoners. (Currently, there is not enough work for convicted prisoners, let alone remands.)
3.117 A three day induction programme is available to remand prisoners. However, some prisoners thought that participation was optional, though it would appear that the contract specification requires compulsory attendance. A wide range of information is available during this induction phase and comes from a variety of disciplines, such as nursing and education staff, chaplains, the PE Instructor and the social worker.
(ii) Comment (as at July 1999)
3.118 The contract specification for remand prisoners is generally superior to that on offer elsewhere in the SPS. Individuals who had previous experience of being in custody said that on arrival, they were immediately aware of far better standards and opportunities, particularly with regard to time out of cell. They were also satisfied with the environment in which they were held, though some objected to the lack of opportunity for cell association, especially as there were no work opportunities.
3.119 Although there was a well constructed regime, there is evidence that not all aspects of the service were being delivered. The lack of opportunity for employment was greatly restricting the variety of activities that could occupy most of the prisoners and it is conceivable that boredom could develop, unless this vacuum can be filled with other purposeful activities.
3.120 The agreed specification has the potential to set performance levels for the remainder of the SPS and the requirement for compliance with the standards would appear to focus management and staff more acutely on their individual responsibilities, whilst clarifying accountability for outcomes. This is a challenge to other establishments and sets a threshold for benchmarking.
(It was announced in September 1999 that Longriggend would close and as a result, the Inspectorate and Researchers comments have been condensed.)
(i) Establishment
3.121 Longriggend is situated on moorland between Airdrie and Slamannan. Formerly an isolation hospital, it became a prison in 1963 and has as its primary function, the detention of male remand prisoners under the age of 21 primarily from the Courts of Glasgow, Airdrie, Hamilton, Stirling and Falkirk. (As a temporary measure during the refurbishment of HMP Greenock - see paragraph 3.112 - it will also be taking young remands from the Courts of Greenock, Dumbarton and Paisley.) At one time, it was receiving between 2,000 and 2,500 admissions per year, each with an average stay of 17 days. However, for no obvious apparent reason, the average daily population has started to reduce _ from about 180 in 1995 to 150 from 1997 onwards. The number of suicides has, however, been increasing - between 1991 and 1993 there were two but this rose to six over the course of the next four years.
3.122 There has been little regular investment in the fabric of this establishment, with its security fences and systems barely adequate for their purpose. None of the cells has integral sanitation and it is estimated that between £4 and £5 million would be required to upgrade the Institution to the required SPS standards.
(ii) Inspectorate Comments
3.123 In the 1980s, Longriggend was described as "a breeding ground for unsocial acts and criminal activities by its bored and apathetic prisoner population", though formal inspection reports in 1992 and 1997 observed that the regime had "gradually improved". Nevertheless, a number of fundamental problems still remained, including a lack of continuity at senior management level. Staff sickness was high and this was impacting on morale and causing disruption to the regime.
3.124 In 1998 a new Governor was appointed and during an intermediate inspection that year, it became clear that she had quickly developed a thorough understanding of the outstanding issues which needed to be addressed. Paramount amongst these was the lack of a national strategy for YOs and young remands which, she believed, was creating uncertainty among staff about the value of their own contributions and the long term future of the establishment. Industrial relations were said to be strained, whilst management and staff shortages were ongoing.
3.125 A number of ways to reduce the effects of isolation for the remand population had been introduced, including an increase in the number of card telephones. Some progress had also been made in creating a basic induction process. The Institution had also taken on an additional role as the central holding unit for PADs.
(iii) Researchers' Comments
3.126 Staff were quick to refer to the fact that the buildings were "in a terrible condition", though this was not immediately obvious to the untrained eye. What was more apparent was the squalor that prevailed, due to a lack of regular cleaning. This seemed to result from a mixture of staff apathy and some disregard for prisoners. Cells appeared to be sparsely furnished and there were problems with the windows, some of which were encrusted with dirt and excrement.
3.127 There were, however, some pluses - for example, the accommodation Halls were relatively spacious, so prisoners could be accommodated with some degree of segregation (depending on their age or previous experience of prison). The dining areas were also substantially cleaner than many other areas. Recreation facilities were limited but a gymnasium and an all-weather playing area were available. The small education unit provided a wide range of opportunities and this was by far the most positive aspect of the regime.
Views of Prisoners and Staff
(a) Prison Location
3.128 Staff tended to the view that because most of the prisoners came from the Central Belt, the location of the Institution was "not too much of a problem". In direct contrast, however, most of the remands said that the Institution's isolation created considerable problems for those relatives and friends who were able to make the long and complicated journey to Longriggend (either by the local bus service, which was limited and expensive, or by private car).
(b) Induction
3.129 We were informed that there were induction programmes for both first-timers and those returning to the establishment, although those interviewed did not seem to be aware that they had been through any formal process. They did, however, acknowledge that introductory videos had been shown.
(c) Living Conditions
3.130 The condition of the cells and the requirement to slop out came in for universal criticism. The food was said to be 'awful' whilst many remands had little or no money to supplement the food and this caused difficulty, especially as the last meal of the day was served at 1545 hours.
3.131 Relationships with staff seemed to vary, with some being perceived as more helpful than others. There was also general criticism of the various local rules, which were held to be overly restrictive.
3.132 Medical services were offering some limited support for drug withdrawal symptoms. However, mental health problems with this age group posed a major problem and examples were cited whereby staff had mistaken these for drug withdrawal problems. Alcoholics Anonymous, Narcotics Anonymous and Cumbernauld and Kilsyth Addiction Services visited regularly. Although none of those interviewed appeared to use these services, records indicated that there was a regular take-up.
3.133 The turnover of the population posed limitations on the provision of meaningful interventions. This, together with a lack of suitable space, prevented the holding of any group work programmes. The social worker interviewed said that there was a need for a separation of the various groups of prisoners and especially school boys, for whom the regime was totally unsuitable.
(d) Occupation
3.134 Remands regarded the lack of anything to do as the biggest problem. Facilities in the recreation rooms were extremely limited and whilst most of them used the gymnasium and the all weather area, it was said that the size of these facilities restricted their value. Weekends were regarded as the most boring time as the lock-ups were much longer whilst at the same time, access to recreation facilities was invariably reduced.
3.135 A large number attended education and said that they found it to be a very positive experience. (The education staff had designed their programme specifically for the age groups concerned and what was available was used to its maximum.)
3.136 Staff were concerned about the lack of occupation for prisoners, though the rules for remands did place limitations on what could be offered. The comparatively short duration of stay also appeared to militate against the provision of an enhanced regime.
(e) Contact with Outside
3.137 Although there was now a telephone on each landing, there were still long queues and call times had had to be limited. In addition, security at visits was said to be intrusive. Contact with lawyers was said to be difficult though agents' visiting facilities were very good.
(f) Categorisation
3.138 Some staff felt that category 'B' status was too restrictive whereas category 'C' was thought to be more appropriate for the majority of the population.
(iv) Overview
Researchers' Comments
3.139 The isolation and boredom reported by the young remands was a major concern to management. On the positive side, the education programme, which was imaginative and reflected enthusiasm and commitment on the part of staff, was widely regarded as being very good. Generally, however, a number of opportunities for influencing change amongst a receptive age group appeared to be being lost.
Inspectorate Comments and Outlook
3.140 In view of the poor condition of the fabric of the Institution, its isolation and other problems, in early 1999 the then Scottish Office Minister of State for Home Affairs tasked the SPS with carrying out a review of its future. Later that summer, the opening of HMP Kilmarnock, together with a steadying in the prison population across Scotland, further reduced the need for a separate YO Remand Institution and on 14 September 1999 it was announced that the establishment would shortly close. The current forecast is that staff and prisoners will move to Letham Hall in HMP Barlinnie, which should be beneficial in a number of ways, especially the opportunity for much more regular family contact.
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